The potential number of migrant workers from Romania and Bulgaria who will come to live in the UK when restrictions are relaxed remains unpredictable, according to a new report.
But the National Institute of Economic and Social Research (NIESR) says it expects the impact on public services will initially be modest - only potentially increasing if Romanian and Bulgarian migrants choose to settle in the country long term.
This will have an effect on schools, putting pressure on primary school places and the need to provide language assistance.
But there will be a lesser impact on the NHS, the housing sector and the welfare system, the study says.
It suggests that future migrants are likely to be young, mainly under 35, healthy, without families - and low-skilled workers, employed in construction, catering, hospitality, and as carers or cleaners.
Evidence from local surveys showed while Romanians and Bulgarians are interested in coming to the UK, it is not a favoured destination and many are interested in temporary stays rather than long-term moves.
Currently, the main destinations for Romanian and Bulgarian migrants are Spain and Italy, and Germany to a smaller degree, the report says.
"It is not possible to predict the scale of migration from Bulgaria and Romania to the UK with any degree of certainty," it goes on.
The extent to which a fresh influx of migrants from both countries will settle permanently in the UK in the future "is impossible to predict".
Bucharest, the capital of Romania Pressure group Migration Watch UK called the report a whitewash.
It has forecast that 250,000 people from Romania and Bulgaria will arrive in Britain by 2019 after restrictions on workers from the countries are removed at the end of this year.
European Union rules allow citizens to stay in the UK for up to three months. To stay longer they must be able to prove they are working, studying or are self-sufficient.
Communities Secretary Eric Pickles last month admitted the Government had "no idea" about the size of the possible influx.
According to a British Labour Force sample survey, there are currently 26,000 Bulgarians and 80,000 Romanians living in the UK, but the actual numbers could be larger, the NIESR study found.
Minister for Europe, David Lidington, welcomed the report as a contribution to the debate on migration.
"The report will help to shape this Government's work to build an immigration system which works in the national interest - supporting the UK economy by continuing to attract the brightest and the best global talent, at the same time as protecting our public services and ensuring our welfare system is not open to abuse," he said.
"Our tough new rules are already taking effect with overall net migration falling by almost one third since 2010."
The independent report, published by the Foreign Office, was commissioned and funded by the British Embassy in the Romanian capital Bucharest and included a review of data and of research literature produced in the UK, Romania and Bulgaria.
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